Creating Academically Proficient and Civically Engaged Students — Through the No Child Left Behind Act (Part 2)

Through the Lens of State Policymakers: Leading in State Policy — Raising Academic Achievement While Supporting Civic Development

A Forum — February 20, 2004

Public schools need to balance the emphasis on high academic achievement with opportunities to apply that knowledge in a meaningful, civically engaged way—within the classroom, the school, and the community. Implementation of the No Child Left Behind Act (NCLB) brings a renewed focus on academic achievement in “core subjects” such as reading and math, but more than a few educators are concerned that this increased focus will upset the balance of education’s attention to students’ civic development. In light of recent research from CIRCLE (the Center for Information and Research on Civic Learning and Engagement), and the Pew Charitable Trusts, this concern is well founded. CIRCLE’s report, The Civic and Political Health of the Nation: A Generational Portrait (featured in an AYPF forum on March 21, 2003, "Generation DotNet": A Contrast in Civic and Political Behavior) revealed that civic and the political/electoral involvement among today’s youth has dropped due to an increase in youth disengagement. According to the report, only fifteen percent of youth ages 15 to 25 are involved in electoral politics [1]; 17 percent are involved civically [2]; and just 11 percent are involved in both. Thirty-seven percent of youth claim to follow politics most of the time (compared with 60 percent of matures (those born before 1946) and 50 percent of Baby Boomers (those born between 1946 and 1964). To address this concern, educational leaders in several states are incorporating initiatives designed to encourage students to become re-engaged members of their communities.

This second event in a series of three special Capitol Hill forum events brought state policy leaders together to discuss common ground between academic achievement and civic development, addressing connections between civic development and academic achievement through methods such as service-learning and civic engagement initiatives to foster a balance in American education.

Elizabeth Burmaster, Wisconsin State Superintendent of Public Instruction, outlined several initiatives taken by the state to encourage both academic achievement and civic engagement. “As an elected, nonpartisan state superintendent for the last three years, I am committed to implementing the No Child Left Behind Act throughout our state, using what we know works in Wisconsin. By framing the top priority of closing the gap in achievement between economically disadvantaged children, children of color, and their peers, we’ve launched our “New Wisconsin Promise” to ensure the opportunity of and access to quality education. Through this initiative, we are focusing on the democratic ideals of public education and the importance of an educated citizenry to the economic development of and the quality of life in our state.” The “New Wisconsin Promise” focuses on narrowing achievement gaps within the state while demonstrating the importance of academic achievement to other state-wide issues, including the economy. An important component of this policy is to ensure that disadvantaged students receive the same high quality education that others in the state receive, and that they are adequately prepared to join the work force when they complete their education.

Burmaster suggested that schools are key centers of democracies, particularly in rural areas in which they are often the centers of community life. “For democracy to thrive, we must go beyond mere knowledge of government to include the development of skills, attitudes, and dispositions needed to sustain and renew traditions of self-governance.“ Service-learning was mentioned by the superintendent as a teaching method useful in reaching this goal. “Young people must see the connection—experientially, hands on—between content they are learning in the classroom and how it applies in the real world.” “Adults,” she said, “must act as role models for children, as well as provide opportunities for children to experience and apply their lessons in the real world.”

Burmaster also referred to a bipartisan initiative started by her predecessor John Benson. Benson created the 2000 Wisconsin Civics Action Task Force (featured in an AYPF forum in June 2000, Service-Learning in State Legislation: A Statewide Citizenship Effort), as a leading statewide initiative that provides schools with a common definition of civics, and joins with several other state-wide organizations to encourage the application of civic ideals and knowledge in the community. In its 2000 report, the Task Force asked, “Will the 21st century be an era of individual isolationism and self indulgence or of rededication to history’s most successful experiment in self government?” Burmaster described the initiative’s call to action as instrumental to the revitalization and conceptualization of democratic citizenship education in Wisconsin, saying that it has brought people in P-16 together from across the state. The initiative fosters collaboration and networking among those in education and individuals in community-based organizations, the Educational Communications Board, Wisconsin Historical Society, State Bar, Wisconsin Supreme Court, UW-Madison School of Education, Campus Compact, and Wisconsin Learning Lab for Service-Learning and Citizenship. Through collaboration, the state’s civic mission has become more visible throughout communities. Successful and helpful collaborative efforts are possible through the work of an interested governor, grassroots organizations, bipartisan collaboration, and a continually expanding coalition of individuals and parties interested in civic development. Burmaster believes that “through these efforts we will emphasize high academic achievement through the acquisition of knowledge and skills as well as the ability among youth to apply that knowledge as responsible citizens.”

Karabelle Pizzigati, Maryland Board of Education, described the state’s definition of service- learning as instruction that includes time for the preparation of a service activity connected to academics, performing the activity and guided reflection on the outcome. According to Pizzigati, service-learning has been accepted throughout the state after what would be considered a rocky start. The requirement for Maryland students is to complete 75 hours of service prior to graduation from high school. In 1992, Maryland jumped ahead of other states to develop a mandatory service-learning requirement for students. The state developed consensus among schools leading to the policy being implemented in 1997. Local districts are empowered with the flexibility to develop their own service-learning plans, suited to their communities and local schools. In 1998 the state’s Department of Education started the Maryland Student Service Alliance to support service-learning in schools. The Alliance provides educators with technical assistance and examples of civic learning and engagement in collaboration with civic associations and business.

As a member of the State Board of Education, Pizzigati places a high value on the civic development of children and youth. She noted that research has demonstrated a link between civic education and academic achievement. States should be aware of this link as they deal with budget issues. She voiced concern that Maryland’s service-learning initiative is currently in danger because teacher and administrator is being drawn to the pressures and budget constraints of NCLB implementation. She fears that districts will be driven to cut activities like service-learning that promote student interest and achievement and believes that states need to address the gaps in NCLB that allow this to happen. Pizzigati asked: “How can we infuse civic engagement throughout the curriculum? How can assessments of civic engagement be developed? How can we ensure that all students have opportunities for service-learning?

Suellen Reed, Indiana State Superintendent, contends that the continuance of the American democratic system depends on the passing of beliefs and practices to the next generation. Young people have to see the democratic system in practice, not just in the news or in the classroom. In an environment of limited resources, collaboration among the key stakeholders (parents, teachers, administrators, state officials, business people and others) is vital, both to ensure that the state continues to pursue the objectives of civic education and to make use of the talents and ideas of a wide range of people. Service-learning can promote academic achievement by giving students an opportunity to apply the math and reading skills they learn in the classroom.

Reed feels the forum discussion is important because if it is successful, the NCLB legislation will create a large body of educated citizens. “We need citizens who can use their minds, think, solve problems, and apply their knowledge. And one of the best ways to develop this is through [a teaching methodology called] service-learning.” To support this, the superintendent suggested collaboration within the state government, pooling resources, and working with partners in the community and in business. She stressed the importance of making sure all students have a chance to learn about leadership and to have experience with responsibility. “All students should have leadership roles,” said Reed. She described her state’s “Exit Project” where students work with the community on a project, then write about the project and prepare and deliver an oral presentation describing it. This, says Reed, gives the community a chance to feel involved and to see what students can do. Service-learning projects develop resiliency within students, helping them to care for someone, develop high expectations, and feel both responsible and valued. “Application of skill is key and it is important to allow students to apply the skills they have developed through standards,” said Reed. She also alluded to an important link to school safety. With more pride in their school and their school work, Reed believes students will gain safety, regard and respect.

Charles Merritt, Education Commission of the States, discussed the boundaries and limitations of state policy-setting parameters. He asserted that NCLB needs more complete assessment strategies, especially in the area of civic development. He provided examples of recent civic education legislation at the state level, such as: anti-bullying legislation in Georgia and Iowa; Indiana’s requirement of 40 hours of community service for high school students and the state’s current legislation (SB 231) to develop a common definition of bullying; and Michigan’s requirement of 40 hours of service needed to receive a Merit Scholarship. According to Merritt, when comparing what is happening in states, it is important to remember the vast diversity among states in how policy is influenced, created and implemented. For example, Wisconsin has no state board, Maryland has a strong state board of education, and Indiana’s education policy is governed through a mix of state and local government control. State-level policy is made in an environment of competing interests (the Governor, the Legislature, Department Secretaries, Board of Education, school officers, community interest groups, foundations, and non-profits), budget constraints, election cycles, and responsibilities to recent homeland security needs. Collaboration and communication, says Merritt, is vital.

Questions and Answers

What are the obstacles to developing civic education?

Both state superintendents said it is the economy. “However,” said Reed, “that’s not an excuse to ignore civic education, but we must keep in mind the bigger picture.” “While K-12 education is prioritized in Wisconsin, funding still had to be cut by four percent,” said Burmaster. “Equitable school financing is a major obstacle, but it could also be a strength.” On a positive note, it was mentioned that there should be a sense of ownership as local governments pick up more cost and civic activism from people coming together fosters greater collaboration between community, schools and higher education, among others.

What is bullying legislation under civic education legislation?

“Bullying legislation is an example of how democracies work in reality,” said Pizzigati. She believes legislation in this area is messy and seldom yields exactly what is wanted. However, creating this kind of legislation can encourage partnerships that help to develop laws that more closely reflect the issues that should be addressed, open doors to conversation, and encourage students to think about the kinds of citizens they are in school. Discussing this type of legislation provides an opportunity to address what sorts of citizens we want our students to be and what the type of learning environment we want our students to have, says Reed. Discussing legislation for dealing with bullying can be a pathway to addressing larger citizenship or civic issues. Reed provided the audience with a clear picture of the importance of legislation in dealing with a difficult subject like bullying. “Forty percent of bullies are later convicted of a crime, while sixty percent of them are convicted of crimes three or more times. Fewer people in prison could mean more money for schools!,” said Reed. She added that too many children stay at home because they are bullied and some schools are currently dealing with what is now becoming known as “cyber-bullying,” where images of students are manipulated and/or threatening messages are sent using school computers.

In an “Age of Accountability” with NCLB, how do we measure civic engagement?

Burmaster suggested that the focus should be on other accountability measurements for areas such as truancy or the graduation rate. Research has shown the positive effects of service-learning on keeping youth in school, specifically in areas of attendance, truancy, and dropout rates. Karabelle Pizzigati suggested that accountability is helpful because it tracks who receives the education and who does not. “Intent to measure is important, but so is how it is measured. Additionally, results of measurements engage the public,” said Pizzigati. “People want accountable programs that allow effectiveness to be tracked. Measurement at many levels is the hallmark of NCLB,” said Merritt. “Technology can be a big help in accountability at the state level. However, students should also be shown how to track and analyze their own progress to monitor strengths and weaknesses,” said Reed.

What sorts of civic education policies exist, and how are they tracked?

In Wisconsin, three credits of social studies which incorporate instruction in state and local government are required for high school graduation, and the state has an initiative to encourage service-learning as a means of professional development. Merritt reported that the National Center for Learning and Citizenship tracks which states have each of 12 different policies on record relating to civic education. They have an easy to read chart of policies state by state.

How to build support for civic engagement across the states?

Build support through policy-makers, through the National Association of State Boards of Education, and connect the student, teacher, and system components to generate continuous “buzz” for the topic. At the school level, seek to develop service-learning schools-within-schools.

Final Questions

• How to include young people in shaping policy, especially at the state decision-making level?
• How well do these strategies work in urban neighborhoods?
• What role is there for local school boards in this conversation?

The panel discussion ended with a few recommendations from the speakers. Reed suggested that districts use town meeting to encourage the engagement of all, especially students. Pizzigati suggested including one voting student member on the state board of education. Burmaster suggested that state leaders should encourage students to sit on school boards and researchers should look more closely at the connection between an increased emphasis on civics and civic involvement and high school graduation. Merritt suggested using the media to engage the public by telling the “whole story” about education.

---

[1] Regular voting, persuading others, contacting officials, canvassing, displaying buttons, signs, stickers, campaign contributions, boycotting, protesting, volunteering for candidate or political organizations. This is a portion of the 19 Core Indicators of Engagement list included in the CIRCLE report, The Civic and Political Health of the Nation: A Generational Report.

[2] Community problem solving, regular volunteering for a non-electoral organization, active membership in a group or association, participation in a fundraising run/walk/ride, other fundraising for charity. This is also part of the report mentioned in footnote 1.

American Youth Policy Forum   1836 Jefferson Place NW,  Washington DC 20036
Telephone 202-775-9731      |      Fax 202-775-9733      |     Email aypf@aypf.org